Uphold democracy and the rule of law in Georgia
- Author(s):
- Parliamentary Assembly
- Origin
- Assembly
debate on 2 October 2025 (35th sitting) (see Doc. 16271, report of the Committee on the Honouring of Obligations
and Commitments by Member States of the Council of Europe (Monitoring
Committee), co-rapporteurs: Ms Edite Estrela and Ms Sabina Ćudić). Text adopted by the Assembly on
2 October 2025 (35th sitting).Provisional version
subject to editorial review.Assembly debate on 2 October 2025
(35th sitting) (see Doc. 16271,
report of the Committee on the Honouring of Obligations and Commitments
by Member States of the Council of Europe (Monitoring Committee),
co-rapporteurs: Ms Edite Estrela and Ms Sabina Ćudić). Text adopted by the Assembly on
2 October 2025 (35th sitting).
1. The Parliamentary Assembly refers
to its
Resolution 2585 (2025) “Challenge,
on substantive grounds, of the still unratified credentials of the
parliamentary delegation of Georgia” and
Resolution 2600 (2025) “The situation
in Georgia and follow-up to
Resolution 2585 (2025) ‘Challenge,
on substantive grounds, of the still unratified credentials of the
parliamentary delegation of Georgia’”, in which it expressed serious
concerns about the rapid democratic backsliding and deep political
and social crisis in Georgia. These developments raise serious doubts
about the authorities’ willingness to abide by Georgia’s membership
obligations and accession commitments to the Council of Europe.
2. The Assembly deeply regrets that the Georgian authorities
have systematically ignored its concerns and recommendations about
the democratic crisis in Georgia, which are shared by the international
community at large. The rapid democratic backsliding has continued
to such an extent that the very existence of democracy in Georgia
is now being questioned.
3. The Assembly deplores the increasingly isolationist policies
and antagonistic relations of the Georgian authorities with European
organisations and their member States. It also deplores the unfounded
attacks and baseless, damaging accusations against members of the
international community in Georgia, which have multiplied in recent
months. Against this backdrop, it deeply regrets the Georgian authorities’
rejection of any form of dialogue with the Assembly and their refusal
to co-operate with the European Commission for Democracy through
Law (Venice Commission) in preparing its opinions on Georgian legislation.
4. The Assembly is concerned by reports that former members of
the Georgian delegation to the Assembly risk criminal prosecution
for their votes or activities as members of the delegation. The
Assembly reiterates that its members cannot be prosecuted for words
spoken or votes cast by them in the exercise of their functions. The
Assembly calls on member States to make every effort necessary to
prevent any such developments from taking place.
5. Regarding the upcoming local elections in Georgia, the Assembly
deplores the fact that its call for an immediate, inclusive process
to establish an electoral environment conducive to new, genuinely
democratic elections was not implemented, as is evident from the
decision by the majority of opposition parties not to participate
in the upcoming local elections. The Assembly regrets that these
elections will not be observed by civil society organisations with
a well-respected track record in election observation due to the
crackdown on civil society. In this respect, it deeply regrets that
the Georgian authorities did not invite the Congress of Local and
Regional Authorities of the Council of Europe to observe the upcoming
elections. The Assembly also regrets that the invitation to the
Office for Democratic Institutions and Human Rights of the Organization
for Security and Co-operation in Europe (OSCE/ODIHR) to observe
these elections was purposely issued so late as to render their
observation impossible.
6. The Assembly condemns the ongoing and relentless crackdown
on political dissent, including by the adoption of repressive legislation
and the abuse of politically motivated legal proceedings against
civil society, independent media, opposition forces and individual
protesters. This crackdown exacerbates the country’s social and
political crisis, violates its Council of Europe membership obligations
and deepens its democratic backsliding.
7. The Assembly reiterates its condemnation of the politically
motivated prosecution of opposition members, journalists and civil
society representatives in Georgia. In this regard, it deplores
the disproportionate and politically motivated imprisonment of journalist
Mzia Amaghlobeli and several opposition party leaders on trumped-up
charges. Such prosecutions aim to silence dissenting voices and
are incompatible with a democratic society.
8. The Assembly deeply regrets that, despite its calls to the
contrary, no effective investigations have been conducted into police
brutality and other human rights abuses committed during demonstrations,
nor into the many substantiated reports of torture and ill-treatment
of demonstrators during their arrest and detention. This is in stark
contrast to the lengthy prison sentences handed down to protesters
on questionable and allegedly fabricated charges. The Assembly calls
for an immediate end to the abuse of legal procedures to silence opposition
and dissent, and for the immediate release of all persons subjected
to politically motivated persecution in Georgia.
9. A dynamic and pluralistic civil society is essential for a
well-functioning democracy. Civil society in Georgia has historically
played a pivotal role in the country’s democratic development. The
Assembly is therefore seriously concerned about the Georgian authorities’
actions against non-governmental organisations (NGOs) to enforce
the controversial Foreign Agent Registration Act, which endangers
their functioning and existence. The Assembly notes that, alongside
the Foreign Agent Registration Act, the Law on Transparency of Foreign
Influence, which falls short of European standards, remains in force.
Furthermore, the Assembly regrets the adoption of the amendments
to the Law on Grants by the Georgian Parliament on 16 April and 10 June
2025. This law requires international donors, including the Council
of Europe and its member States, to obtain the Georgian Government’s
approval before providing funds or assistance to Georgian civil
society organisations. Receiving an unauthorised grant will result
in the local organisation being fined twice the amount received.
At the moment of adopting this Resolution, more than 60 civil society
organisations had been informed that they would be subject to inspections
by the anti-corruption bureau, whose independence from the executive
branch of government has been widely questioned. The cumulative
effect of these laws has been devastating for civil society in Georgia,
whose survival is currently at risk. In this context, the Assembly
deplores the freezing of the bank accounts of seven well-respected
civil society organisations as part of a criminal investigation
into alleged sabotage on behalf of foreign entities. This measure
has had a devastating effect on those organisations, resulting in
their de facto liquidation.
10. The Assembly is concerned that intimidation and retaliation
against civil servants, including a large number of dismissals,
have continued. This undermines the existence of an independent
and impartial civil service in Georgia.
11. The Assembly reiterates its serious concerns regarding the
parliamentary investigative commission into the activities of the
“United National Movement (UNM) regime” and its political representatives
between 2003 and 2012. This investigation was later extended to
cover the period from 2012 until the present day. The Assembly deplores
the commission’s conclusion that the UNM and its affiliated parties
hindered the establishment of a healthy political system in Georgia
and should therefore be banned. The Assembly strongly condemns the
recent announcement by Georgia’s Prime Minister that the ruling
majority will appeal to the Constitutional Court to declare all
parties belonging to the “collective UNM” – practically the entire
current democratic opposition – unconstitutional. In the Assembly’s
view, such a ban on the democratic opposition would effectively
establish a one-party dictatorship in Georgia, which would be incompatible
with Council of Europe membership.
12. The Assembly urges the Georgian authorities to immediately
reverse the breakdown of democracy in the country. It reiterates
its readiness to engage in open and constructive dialogue with the
authorities and all political and social forces in Georgia, with
the aim of reversing the democratic backsliding and ensuring that the
country honours its membership obligations and accession commitments
to the Council of Europe. However, the Assembly emphasises that
such a dialogue can only be based on acceptance of the Council of Europe’s
fundamental norms and principles. It notes that Georgia can benefit
from the full support of the Council of Europe in this respect and
urges the authorities to make use of all tools available. As a sign
of its readiness for dialogue, the Assembly supports the rapporteurs
for Georgia of the Committee on the Honouring of Obligations and
Commitments by Member States of the Council of Europe (Monitoring
Committee) in visiting the country at their earliest convenience.
13. The Assembly recognises that reversing the breakdown of democracy
in Georgia is an issue for all Council of Europe bodies. It therefore
urges the bodies of the Council of Europe to use all available means, including
those under Article 52 of the European Convention on Human Rights
(ETS No. 5, the Convention), and invites member States to use interstate
applications to the European Court of Human Rights under Article 33
of the Convention to ensure that Georgia fully honours all the standards
and obligations stemming from Council of Europe membership.
